LIBRARY OF CONGRESS 



021 486 782 5 



HoUinger Corp. 
pH8.5 



LIBRARY OF CONGRESS 



021 486 782 5 



HoUinger Corp. 
pH8.5 



1910 

Copy I 

REPORT 



OF THE 



Educational Commission 



APPOINTED BY THE 



KANSAS STATE TEACHERS^ 
ASSOCIATION. 



January, 1911, 




STATE PRINTING OFFICE, 
TOPEKA, 1911. 






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Kansas Educational Commission. 



E. T. Fairchild, Chairman ex-ofiicio Topeka. 

State SupevintGndent Public InsUiui ion. 

Superintendent M. E, Pearson Kansas City. 

Superintendent A. F. Senter Great Bend. 

Principal C. A. Wagner Emporia. 

Principal S. M, Nees Independence. 

County Superintendent Lee Harrison Wellington. 



Report 

Issued by E. T. Fairchikl, State Superintendeut of Public Instruction. 

The Educational Commission appointed by the State Teach- 
ers' Association in October, 1910 begs leave to submit the fol- 
lowing report : 

STATE AID FOR WEAK SCHOOL DISTRICTS. 

1. It is the duty of the state to see that every child within 
its borders has the opportunity to secure a good education. 
Children in the poorest section of the state have as much right 
to an education at hands of the state as one living in the rich- 
est portion. Every child, whatever his condition as to location, 
is entitled to a "square deal." 

2. Last year there were 2667 school districts out of 7859 
which maintained a school term of only six months or less. 

3. The last legislature appropriated about $2,264,059.00 for 
the maintenance of the state educational institutions, the at- 
tendance of which was 8004 for the year 1910. Liberal ap- 
propriations for these splendid institutions is to be commended, 
but surely there should be some consideration on the part of 
this great commonwealth of the 23,418 boys and girls who, 
by force of circumstances are compelled to live in districts un- 
able to maintain school for longer period than from three to 
six months. 

4. One of the crying needs in our state is that of better 
qualified teachers for the country schools. Little encourage- 
ment for better preparation is found in the probability of em- 
ployment for only three to six months. The fixing of a mini- 
mum term of sufficient length will go a long way toward im- 
proving these conditions. ; 

5. State aid for weak districts and minimum terms is not a 
new departure in school matters. Twelve states of the Union 
have made provision for a minimum term of seven months or 
more. Thirteen states make district appropriations for the 
aid of the public schools. Every state except eight render state 
aid in some form to their public schools. Kansas with her 
reputation for loyalty to whatever benefits her citizens can 
not afford to remain behind in educational progress. 

(3) 



FREE HIGH-SCHOOL EDUCATION FOR ALL. 

Twenty-three counties of Kansas have county high schools 
in which tuition is free throughout the county. Under the 
Barnes law thirty-seven other counties have high schools free 
to all pupils within the county, thus making a total of sixty 
counties in all in which the right of the child to a free high- 
school education is recognized. There still remain forty-five 
counties which, as far as the high school is concerned,, are 
operating under the tuition system of the days of our fore- 
fathers. As regards these forty-five counties, Kansas is be- 
hind the states laying claim to good school systems. 

This condition ought no longer to exist. It is the duty of the 
state to provide that every child shall have an opportunity to 
secure an adequate education free. The value of a high school 
education is as generally recognized to-day as was the value of a 
complete elementary education a generation or so ago. Tuition 
acts as a barrier between the child and a high-school education 
at the moment when the strongest incentives are needed. It 
is enough for the parent to bear the other expenses of an educa- 
tion without the added burden of tuition. Because of this 
barrier the community and state lose the best services of many 
bright, but poor boys and girls, because the avenues to op- 
portunity are closed against them. Let us in Kansas be true 
to our instincts and traditions and give an equal chance educa- 
tionally to all our boys and girls and not merely to the favored 
few. Especially let us give country children an equal chance 
with their city cousins. While we delay many capable young 
people are being dwarfed intellectually, and immediate help 
is imperative. 

Lack of action in most cases thus far has been due to objec- 
tions to the nature of the existing laws for extending free 
ihigh-school privileges rather than to an unwillingness to per- 
form a belated, just and patriotic duty towards our future 
citizens by giving a fair and equal chance to all. Until the 
remaining counties are ready to adopt one or the other of the 
free high school laws now on our statute books, immediate 
relief should be given them through some measure that will 
appeal to all as being just and fair in all respects. 

The proposed law provides that a general tax should be 
levied on the portion of the county having no high school. That 
tax will be merely enough to pay the actual cost of furnishing 



high scKbol education to all persons from that territory at- 
tending high school. According to the best legal advice the 
plan is unquestionably constitutional. An additional feature 
is that of providing that districts maintaining a high school 
course less than four years in length should pay the tuition of 
their pupils upon completion of that course in high schools 
having a f^r-year course. 

By this plan corporate property, such as railroads, would 
pay its full share toward education. That it does not do so now 
is evident from a glance at the very low school levies in dis- 
tricts in which such corporate property happens to exist. Each 
person can form some estimate as to how small the amount 
would be for the average individual by inquiring into the 
amount of high-school tuition that is now paid in his county. 
While that amount would be almost negligible the radical im- 
provement to our school system and the benefit to our people 
would be very great. 

CERTIFICATION OF TEACHERS. 
Conditions. 

"As is the teacher so is the school." If the sentiment ex- 
pressed in this quotation is a true one, the improvement oi 
our rural schools depends to no little extent upon the qualifica- 
tions we require for the certification of our teachers. 

In the rural schools of Kansas, many teachers are young, in- 
experienced and poorly prepared. Forty -five per cent of all 
the rural school teachers have no education beyond the eighth 
grade, while 65 per cent of them do not have educational quali- 
fications equivalent to high-school graduation. Further, 55 
per cent of all county certificates are of the lowest grade. 

The requirements for teachers' certificates are gradually 
being strengthened in other states and Kansas should be among 
those states that are manifesting this progressive spirit. 

The course taken by Indiana will serve to illustrate. The 
law which went into effect two years ago requires each appli- 
cant to be a graduate of a four-year high-school course, and, 
in addition, to have had at least twelve weeks of normal 
training. 

New York has gone even so far as to require all certificates 
issued after April 1, 1907, to be of state wide application, and 
requiring about the same educational qualifications that Kan- 
sas demands for the different kinds of state certificates. Illi- 



6 

nois and Iowa have also made some fundamental readjust- 
ments though not going quite so far in their changes as the 
older state of New York has done. They all serve to illustrate 
the general tendency to place our children under the care of 
persons who have made special preparation for the duties and 
responsibilities of teachers. 

PROPOSED CHANGES. 

We desire therefore to make the following recommendations : 

Requirements, Third-grade Certificate. 

Age. — Eighteen years. 

Term. — One year. 

Number. — Not more than two if applicant has taught five 
months. 

Examination. — In all those subjects required by law to be 
taught in the public schools; and such other subjects as the 
State Board of Education may prescribe. 

Not renewable. 

Requirements, Second-grade Certificate. 

Age. — Nineteen years. 

Term. — Two years. 

Experience, — Seven months. 

Examination. — Same provisions as above. 

Requirements, First-grade Certificate. 

Age. — Twenty-one years. 

Experience. — Twenty-one months. 

Examinations. — Same provisions as above. 

Renewable on condition that the holder attends County 
Normal Institute, or takes six weeks professional training in 
some approved school, and performs such professional work 
as the State Board of Education shall direct. 

SPECIAL PROVISIONS. 

A holder of an unexpired second-grade certificate, who has 
taught twenty-one months, may retain any grade of ninety 
per cent, or over, upon his second grade to apply upon the re- 
quirements for a first grade certificate. Professional certifi- 
cates now in force will retain their renewal privileges but no 
more professional certificates will be issued. 

The commission recommends that after 1913 no person be 
granted a certificate who has not completed at least one year 
of work in an accredited high school or its equivalent, and 
after 1915 two years' high school work or its equivalent shall 



be required, and after 1917 four years' high school work or its 
equivalent ; exception being made in the case of any one who 
has taught at least six months before 1912. 

A FEW REASONS FOR THE PROPOSED CHANGES. 

The minimum age limit should be eighteen years. Higher 
qualifications are demanded of teachers. More time should 
therefore be given in which to obtain them. Raising the age 
limit encourages extended preparation. A low age limit is a 
premium upon incomplete preparation. 

The commission believes that before professional progress is 
possible, the fundamentals of an education should be acquired. 
Hence the provision is made that the minimum amount of 
education for the rural school teacher should be equivalent to 
that of high-school graduation. City boards of education are 
insisting upon college graduates with some professional work 
as teachers in high schools. Why should not district boards 
have the right to insist upon properly qualified teachers for the 
rural schools? The change proposed is a gradual one and it is 
improbable that a shortage of teachers would occur. Certain 
jurisdiction is to be given to the State Board of Education to 
provide against any possible shortage of teachers. On the 
other hand, the premium placed upon special preparation for 
the work of teaching, and the wider field thrown open to 
thoroughly qualified teachers, will cause a larger number of 
bright and ambitious young people to choose the work of teach- 
ing. Also, to prevent injustice to teachers who are already 
successfully engaged in the work of teaching, exceptions are 
made. 

The excellent results of manual training and the teaching of 
home economics, which includes domestic science and domestic 
art, in our city schools clearly indicate the desirability of the 
extension of these and kindred lines of work. Kansas is es- 
sentially an agricultural state. Her wealth and prosperity 
depend upon the successful tilling of the soil and the intelligent 
development of the farm activities. The commission there- 
fore recommends the provision that the State Board of Edu- 
cation may prescribe additional subjects. 

Another clause provides for the renewal of the first grade 
certificate on condition of successful teaching and professional 
progress. At its best, a written examination is a very imper- 
fect means of testing the ability of any applicant to teach 



8 

school, and it is in no way a test of possible teaching skill or 
adaptability to the work of a teacher. One of the first steps in 
the direction of developing a trained teaching force for a state 
is to lay less stress upon examinations and to place the main 
emphasis upon professional training and successful experience. 

BOARDS OF EDUCATION OF CITIES OF THE FIRST AND 
SECOND CLASS. 

Some legislation is absolutely necessary, as under the com- 
mission form elections are held only on odd-numbered years and 
the general election law for nominations and elections of boards 
of education is not applicable. 

There is a conviction on the part of a large number of cities 
that the number of members should be reduced to six, making 
the law uniform for all first- and second-class cities. At pres- 
ent there are boards of education of six, eight, ten and twelve 
members. 

A law providing for a uniform number of six members,^ 
nominated and elected at large for a term of four years, three 
to be elected each odd-numbered year at the general city elec- 
tion, is proposed and highly recommended. It is also recom- 
mended that this law provide for the present members who 
have unexpired terms to serve jointly with the newly elected 
members until the expiration of their term. 

The argument in favor of such recommendation is not alone 
that of a uniform manner of selection, but it is believed that 
a body of not more than six members is likely to be a more 
effective agency in administering the school affairs of a com- 
munity than a larger number could possibly be. It is also felt 
that the nomination and election would insure a broader out- 
look in regard to the schools and would tend to eliminate the 
individual interests which frequently are pressed at the expense 
of the community as a whole. Experience seems to demon- 
strate that a nomination and election by all the people would 
secure a better and more capable class of men. 

A LARGER UNIT OF SCHOOL ORGANIZATION. 

This committee has given careful consideration to the ques- 
tion of a larger unit of organization for the schools of Kansas 
and is fully convinced that the enactment of a law making 
the county the basis of organization would be highly beneficial 
to the cause of general education. 



9 

Three units of organization are in use in the various states 
of the Union; the district, the township, and the county. 
More than half of the states are organized on a district basis, 
The New England states, Pennsylvania, Ohio, Indiana, and a 
few other states have adopted the township system. The 
Southern states use the county plan. Iowa and South Dakota 
have recently undertaken the adoption of the county unit. 
Committees on the codification of school laws in several other 
states have recommended its adoption. Many school men and 
others who are giving their attention to the practical work- 
ing of school affairs and to the consideration of plans for 
the improvement of the schools so as to meet the needs of the 
times are urging the adoption of the county as the unit of 
organization. Wherever this plan has been given a trial, the 
results have been highly satisfactory. 

The following are a few of the reasons for the superiority 
of the county unit over the district system : 

1. It is less expensive. This has been true in most places 
where it has been tried. In the comparatively few instances 
in which the cost of schools has been increased, the superior 
facilities afforded have more than counterbalanced the ad- 
ditional outlay. 

2. It equalizes taxes levied for school purposes. In one 
county in Kansas, the valuation of a certain school district is 
only $63,000 ; of another district $3,521,000. The tax levied in 
the first district is seven mills; in the second, no tax was re- 
quired this year. In two other wealthy districts, the levy was 
only four-tenths of a mill. Other counties in the state show 
similar conditions. Certainly no valid reason can be given 
why one man should pay fifteen or twenty times as much for 
the education of his children as another, equally wealthy, 
should pay for the same privilege. Under the county system, 
railroad and other corporation taxes would be more widely 
distributed and present conditions greatly improved. 

3. It insures equality of school provisions as to school 
houses, apparatus, and other school equipment, thus making 
greater uniformity of attainment possible. 

4. It secures for teachers greater permanency of position. 
Under the district system, the teacher often loses her position 
on account of petty neighborhood quarrels. Such conditions 
would be less likely to affect the school under county organiza- 



lO 

tion and greater efficiency would be a natural result of the 
longer tenure of office of teachers. 

5. The county system reduces the number of schools and 
increases the number of pupils in attendance at each, thus 
making possible better grading and classification and adding 
the inspiration of numbers. 

6. It is a means, possibly the only one, of obtaining that 
closer supervision necessary to bring the common schools to 
the highest degree of efficiency. The single visit paid by the 
County Superintendent to the district school annually can ac- 
complish but little in the way of efficient supervision. The 
county system renders possible the appointment of assistant 
superintendents or supervisors who can visit the schools often 
enough to be of some real service to them. 

7. It eliminates all district boundary disputes, having a 
decided advantage in this respect over both district and town- 
ship systems. 

8. It makes consolidation of schools easy and practicable. 
The greater efficiency of consolidated schools, because of their 
better buildings, better equipment, more competent teachers, 
more thorough supervision, more careful grading and classi- 
fication is admitted by all educators and by all patrons familiar 
with them. A carefully worked out plan of consolidation for 
the country schools of our state would be of inestimable value 
to the cause of education. 

This Committee is in favor of immediate steps being taken 
to establish the county system in the State of Kansas. Many 
reasons can be added to the above for its adoption. We believe 
that this would be a great forward movement for the common 
schools and would enable them to meet the growing needs of 
the children of the state, which, under present conditions, they 
are unable to do. 

We commend this measure to your favorable consideration, 
believing that it will appeal to every lover of progress in edu- 
cation as being worthy of enactment into law. 

QUALIFICATIONS OF COUNTY SUPERINTENDENT. 

During the last ten years each succeeding state legislature 
has placed added responsibilities and duties on the office of 
county superintendent, making it one of the most important 
offices in the county. It seems consistent, therefore that a 



1 1 

corresponding raise in qualifications for county superintendent 
be made. 

It seems wise to recommend a change in the present law, so 
as to prohibit any person from holding the office who was not 
actively engaged in school work at least four of the twelve 
months prior to his nomination. 

After the year 1914 only persons who are holding a state 
certificate, a diploma from an accredited college, or a special 
superintendent's certificate, hereinafter described, shall be 
eligible to the office of county superintendent. 

We realize that many of the most efficient superintendents 
of our state do not possess the above-named qualification, and 
that perhaps in some counties in Kansas persons having'such 
qualifications might not always be available for the office ; yet 
in order that competent superintendents may be secured for 
every county, the State Board of Education should be em- 
powered to grant a special superintendent's certificate to per- 
sons of excellent executive ability, strong supervisory powers 
and good scholarship, upon the presentation of such evidence as 
the board may prescribe and in such manner as it may direct. 

The above recommendations are from the report of the leg-islative 
committee of 1909. 

CLERKS FOR COUNTY SUPERINTENDENTS. 

The Educational Commission of 1908, appointed by Gover- 
nor Hoch, reported on this subject, in part, as follows : "The 
county superintendent finds his broadest and most helpful 
field of operation in the actual supervision of school work. 
To go out in the schools of his county and spend, not alone an 
hour, but half a day, or even a whole day, in careful observa- 
tion, in the giving of timely advice, and of assisting the 
teacher to solve the problems that confront her, is of infinitely 
more value than the routine work of the office itself. 

"Perhaps the chief advantage of city and graded schools 
lies in the closer supervision— in the opportunity that comes 
to the superintendent for daily visits to the various schools, 
and because of close and frequent inspection he is able to 
make. 

"In this state there are twenty county superintendents who 
have more than 75 and less than 100 teachers under his super- 
vision, and fifty-four counties in which there are more than 
100 teachers in the rural schools. 



12 

"To visit and observe the work of all the schools, correcting 
any deficiencies that may exist; to encourage the beginners in 
teaching; to hear and adjust the difficulties that arise in many 
school districts; to attend the educational meetings and 
teachers' associations which the law requires, and to keep the 
office open each Saturday, together with the mass of corre- 
spondence that is sure to accumulate, is a task greater than 
can be properly performed by any one county superintendent. 

"Any law that makes possible the discharge of the higher 
and real duties of the superintendent — namely, close, intelli- 
gent and helpful supervision — will be of greatest value to our 
rural schools." 

The Educational Commission appointed by the president of 
the State Teachers' Association in 1909 recommend that there 
be "some provision in law for employing and paying an assist- 
ant in the office of county superintendent." 

In accordance with the above recommendations, we earnestly 
petition the legislature of 1911 to enact a law providing that 
the county commissioners of the several counties may allow 
annually the following sums, or as much thereof as they may 
deem necessary, for clerk hire in the office of county superin- 
tendent : , 

In counties employing 75 teachers, $300 ; 100 teachers, $400 ; 
200 teachers, $600. 

SALARY OF COUNTY SUPERINTENDENTS. 
Conditions in Kansas. 

The laws regulating the salary of county superintendents 
have become unjust in operation in many cases, inasmuch as 
the conditions have changed materially in every county of the 
state since the adoption of the present plan. In 1881 the pres- 
ent plan of basing the salary upon certain school population 
was inaugurated, slight changes occurring in 1897, 1899, 1901, 
1905, etc. 

At that time also a limit was placed upon certain counties. 
One county (Saline) has a population of 3264 school children 
and employs 102 school teachers, and pays $1200, while another 
(Harvey) has a population of 3695 and employs 99 teachers, 
and pays but $1000. Still another (Butler) has a population 
of 6200 and employs 206 teachers, and pays $1200 per year. 
The addition of one teacher in Harvey county will make an 
addition of $200 in the superintendent's salary. 



13 

It is evident from the point of work to be done that if the 
first is paid justly the other two are treated unjustly. 

Inequalities. 

The following schedule furnishes some striking compari- 
sons: 

School 
County. population. No. teachers. Salary. 

Saline 3,264 102 $1,200 

Harvey 3,595 99 1,000 

Sumner 6,402 227 1,200 

Morton 320 15 540 

Hodgeman 935 43 540 

The above table is taken from reports of 1910. 

In some western counties it is necessary under the present 
laws for the county superintendent to teach in some of the 
schools of the county so as to make enough money in addition 
to the salary as superintendent to provide living wages. 

In many instances the superintendent has teachers under 
him receiving salaries higher than his own salary. 

County Superintendents' Salaries. 

In other states the county superintendent's salary is out of 
all proportions when compared with Kansas, In nearly every 
state county superintendents are allowed traveling expenses 
and mileage in addition to salary. 

Below are some figures that should be compared with 
Kansas : 

state. Minimum. Maximum. 

Kansas $540 $1,200 

Illinois 1,250 7,500 

Colorado 1,000 2,800 

lowa 1,250 1,500 

Oregon 800 1,500 

North Dakota 1,000 2,000 

Pennsylvania 1,000 3,500 

Oklahoma 600 1,600 

Minnesota, not less than $10 per teacher 1,800 

Indiana, $4.50 per day 2,000 

ARGUMENT. 

The plan to base the salary upon population and number of 
teachers is a wise provision, and if adjusted by succeeding 
legislatures will work no hardship upon anyone. However, it 
seems that some scheme might be adopted that would readily 
adjust itself to the changing needs of the changing conditions 
in the various counties. If the present plan is continued it 
should be modified so as to raise the maximum in the large 



14 

counties and allow an addition on a smaller number of teachers 
in the small counties. 

It will be noticed that in the proposed schedule every county 
in the state of Kansas may have the privilege of paying 
$800. In the more thinly populated parts of the state counties 
may pay such part of the $800 as may be required to procure 
suitable persons to supervise their schools. 

It will be observed further, that under the proposed changes 
in the law the adjustment in the schedule of salaries yields 
more readily to the changes in the several counties. This 
change, if accomplished, will be the first material change in 
any county in thirty years. 

The fact should be borne in mind that every legislature since 
1881 has added duties and responsibilities upon the county 
superintendent, making him at present the most far-reaching 
influence in the whole educational system in the state. This 
being true, the salary should be such as to attract the strongest 
men in the profession to the office of county superintendent, 
which it does not do at the present time. 



■ IBRflRY OF CUNUKtoo 

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